Migration Report 2011 Imprint Published by: Federal Office for Migration (FOM), Quellenweg 6, CH-3003 Bern-Wabern Editing and concept: Information & Communication, FOM Realisation: www.casalini.ch Available from: SFBL, Federal publications, CH-3003 Bern, www.bundespublikationen.admin.ch Art. No.: 420.010.E © FOM/FDJP June 2012 Photo credits Philipp Eyer and Stephan Hermann: cover page, pages 4, 7, 13, 14, 17, 22, 25, 27, 29, 30, 32, 35, 37, 40, 42 Laurent Burst: page 1 FOM: page 44 Migration Workshop, FOM: pages 8–11 6.12 200 Editorial Asylum seekers form only a small percentage of total migra- tion flows. Labour migrants are by far the largest group. In 2011, a total of 142 471 persons immigrated to Switzerland. Labour migrants from EU-27 member states accounted for 40.2 % of these newcomers and labour migrants from third states accounted for 7.9 %. A further 30 % moved to Switzer- land by virtue of family reunification. A strong Swiss economy is dependent on immigration. Since 2011, nationals of 25 EU/EFTA member states are now fully entitled to live and work in Switzerland under the terms of the Swiss-EU bilateral agreement on the free movement of persons. For Bulgarian and Romanian nationals, quotas and restrictions will remain in place until no later than 31 May 2016. In 2012, the EU is expected to request that Switzerland extend the bilateral agreement to include Croatian nationals. We wish to protect and encourage cultural diversity and prosperity. However, migration-related problems such as wage dumping need to be addressed. Moreover, immigration can only be accepted when everyone understands that the purpose of immigration is to enter the labour market, not to secure unemployment or welfare benefits. At the same time, anyone who lives and works in Switzerland must also become integrated. Successful integration requires For centuries, people have crossed borders under political, willingness on the part of foreigners as well as openness on social and economic imperatives. The only difference has been the part of the Swiss population. Learning a national language the direction of migration flows. Back in the 19th century, and becoming familiar with social norms are also essential in Switzerland was an emigration country. This fundamentally ensuring successful integration. Priority in federal migration changed in the early 20th century. Nowadays, Europe is seen policy is therefore given to the creation of traineeships and by many migrants as a successful model of western culture. language courses. And if they can just make it to “Paradise Europe”, their dreams will come true. The revolutions in North Africa have set The present report provides an overview of the wide range numerous political and economic refugee flows in motion. of activities carried out by the 742 employees of the Federal However, “Fortress Europe” has long closed its gates to the Office for Migration along with the main themes handled. masses. Many migrants have been forced to return to their I hope you will enjoy reading this report! home countries, sometimes on more than one occasion. Others have found asylum in Switzerland and may remain. Mario Gattiker Director of Federal Office for Migration 1 2 Table of contents Editorial 1 Table of contents 3 A Year at a glance 4 B Migration facts 8 1. Overview 8 2. Historical context 8 3. Conclusions 11 4. New developments 12 C Migration 2011 14 1. Schengen visas 15 2. Immigration and foreign resident population 15 3. Employment 16 4. Europe 18 5. Asylum seekers 19 6. Hardship cases 23 7. Relations with countries of origin and third states 23 8. Integration 24 9. Naturalisations 25 10. Return 26 11. Procedures to remove and keep people away 29 D Highlights in 2011 30 1. Impact of North African crises on migration to Switzerland 31 2. Dublin Association Agreement 33 3. Revision Ordinance of 20 January 2010 on the Issue of Travel Documents for Foreign Nationals (SR 143.5) 34 4. Integration plan 34 5. Integrated border management strategy 36 6. FDJP report on measures to accelerate processing of asylum applications 38 7. Free movement of persons 39 8. Schengen acquis 40 E General information about FOM 44 Appendix 46 3 Nicola M. from Italy has run a shoemaker’s business for 20 years. AYear at a glance 4 Brief outline Impact of North African crises on migration to Switzerland Integrated border management In 2011, Arab countries set a transformation process in motion The Schengen Association Agreement has fundamentally for which the development and outcome remain uncertain. changed the way in which people are checked at the border: 2011 was a year of civil protest movements against the previ- although people can now freely move across internal borders, ously inviolate authority of the political elite. The aim of the border checks on the external borders have become more protest movements was to fight for human dignity, greater stringent. This change in system requires new Schengen-wide freedom and social justice. For Switzerland, this led to a sig- coordination of measures to fight illegal migration and cross- nificant increase in asylum seekers from North Africa. border crime. Closer cooperation at the national level is a vital prerequisite for this. Dublin Association Agreement The Dublin Association Agreement came into force on 12 Decem- FDJP report on measures to accelerate ber 2008. The Dublin Agreement ensures that only one Dublin processing of asylum applications country has jurisdiction over a particular asylum application. On 23 November 2010 the Political Institutions Committee This prevents asylum seekers from submitting multiple asylum of the Council of States (PIC-S) has decided to examine and applications in various countries. Between the date when the discuss the draft revision of the Asylum Act (SR 142.31). The Swiss-EU bilateral agreement on Schengen/Dublin cooperation committee members welcomed the draft, the main purpose became operational (i.e. 12 December 2008) and 31 December of which was to simplify and accelerate processing of asylum 2011, Switzerland requested that 21 382 (2011: 9347) asylum applications. FDJP was also asked to draft a report on various seekers be transferred to another Dublin country. In 16 699 measures that could be taken to significantly reduce the cases (2011: 7014), the Dublin country concerned confirmed amount of time needed to process these applications. that it was responsible for processing the asylum application and that it was therefore willing to take over the case. Free movement of persons Since 1 May 2011, restrictions on the free movement of Revision of Ordinance on the Issue of nationals of EU-8 member states (Poland, Hungary, the Travel Documents for Foreign Nationals Czech Republic, Slovenia, Slovakia, Estonia, Lithuania and Since 1 March 2010, foreign travel restrictions for persons Latvia), including quotas on work permits, have been lifted. temporarily admitted to Switzerland for asylum have been Immigration of Eastern European nationals to Switzerland lifted. This measure is intended to encourage greater inte- significantly increased from 1 May to 31 December 2011. gration of these persons. This lifting of travel restrictions While demand has mainly been for skilled workers in drew criticism from cantonal migration authorities, foreign construction, hotel industry and agriculture, there has diplomatic/consular missions and numerous politicians. also been an influx of less skilled workers. An FOM working group, which was also comprised of can- tonal representatives, carefully reviewed the Ordinance of Schengen acquis 20 January 2010 on the Issue of Travel Documents for Foreign Since the signature of Schengen Association Agreement on Nationals (SR 143.5). The revised draft should go into effect 26 October 2004, the EU and Switzerland have added a total on 1 July 2012. of 131 Schengen acquis to the Schengen Association Agree- ment. So far, there have been no further Dublin acquis. In Integration plan 2011, 11 Schengen acquis fell under the remit of the Federal In March 2011, the Confederation established the parameters Office for Migration. Most of these acquis related to Schengen of a four-step integration plan. First of all, the Foreign Nation- visas and the EU’s External Borders Fund (EBF). als Act (SR 142.20) will be revised to legally anchor the prin- ciple of “expectations and encouragement”. Secondly, special legislation will be revised to include provisions on integration and foster equal opportunities. Thirdly, specific measures will be taken to encourage integration. Lastly, integration dialogue will be intensified. 5 Key figures in 2011 Last year, Switzerland issued 434 383 Schengen visas. As in 22 551 persons applied for asylum in Switzerland. Most of the previous year, most of these visas were issued by Swiss these asylum seekers came from Eritrea, Tunisia, Nigeria, consulates in India, followed by those in China and Russia. Serbia, Afghanistan, Macedonia, Syria, China, Somalia and At the end of the year, there were 1 772 279 (2010: 1 720 393) Kosovo. legally resident foreigners in Switzerland. Of these legally Of the 19 467 asylum applications handled at first instance resident foreigners, 1 147 185 persons (2010: 1 101 760) in 2011, 3711 persons were granted asylum. This corresponds were EU-27/EFTA nationals. The proportion of foreigners to an approval rate of 21 %. to the total Swiss population stood at 22.3 %. 2231 persons obtained residence permits as hardship cases. 99 932 EU-27/EFTA nationals immigrated to Switzerland. A total of 2771 persons left Switzerland under the federal Around 65 % of these foreign nationals immigrated to return assistance programme. Switzerland for the purpose of taking up employment. Swiss authorities ensured the removal by air of 9461 persons. 37 854 persons were granted Swiss citizenship. As in 70.5 % of these cases fell within the scope of the Asylum previous years, those naturalised came chiefly from Serbia, Act and 29.5 % fell within the scope of the Foreign Nationals Italy and Germany.